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Catalogue Reference:CAB/129/4
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Printed
for the Cabinet.
November
SECRET
1945
Copy No.
C P . (45) 293.
20th November, 1945.
CABINET
O A D C A S T I N G
REPORT
POLICY
BY
T H E L O R D P R E S I D E N T OF T H E COUNCIL, T H E MINISTER OF INFORMATION, T H E POSTMASTER-GENERAL AND T H E M I N I S T E R OF S T A T E Cabinet Offices, S.W. 1,
20th November, 1945.
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CONTENTS.
Paragraphs 1-5
Introduction
I . - T h e Future of the B . B . C . The Renewal of the Charter
The Board of Governors
...
Staff
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6-7
8-11
12-14
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.-­
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15-16
17
18-21
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... '
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22-24
­ 25 26
27-28
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29-30
31
32
II.—Technical Considerations Affecting Broadcasting—
Quality of Transmission and Reception
Electrical Interference
...
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Wavelengths and Programmes
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...
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III.—Broadcasts to Foreign Audiences—
The European Service
....
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Other Overseas Services . . . .
...
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- General Considerations
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.;;
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Interference with Maritime Wireless Services
IY.—Empire Broadcasting—
General Policy
The Dominions
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India and the Colonies
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- ...
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Y.—Home Broadcasting—
Programmes and the Distribution of Wavelengths
... Regional Devolution ...
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Advertisement and Sponsored Programmes
Broadcasting of Parliament ...
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... .. '..
Wire Broadcasting
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33-35 36 37 38 39-43 YL—Finance—
Pre-War Position
Post-War Position
44
45-49
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YII.—Miscellaneous Questions—
Commercial Broadcasting from Overseas
Control of Wireless in E x - E n e m y Countries
International Broadcasting Station
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Summary of Recommendations
Appendix—
Wavelengths used for Broadcasting Purposes.
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50-51
52-54
55-56
57
BROADCASTING
POLICY.
REPORT.
'
-
INTRODUCTION.
On the 27th J a n u a r y , 1944, the W a r Cabinet (W.M. (44) 12th Conclusions,
Minute 3) set up a Committee consisting of :—
The
The
The
. The
The
Minister of Reconstruction (in the Chair),
Lord President of the Council, Minister of Information, Postmaster-General, Minister of State, to enquire into future broadcasting policy and to make recommendations.
2. The scope of the Committee's enquiry was to include :—
(a) The future organisation of broadcasting in this country;
(b) Means of preventing the establishment on neighbouring foreign territory
of commercial stations which compete with the B.B.C.;
(c) The control of wireless in ex-enemy countries;
(a) The possibility of developing an international wireless service devoted
to spreading the principles of international co-operation.
3. The Committee held several meetings and reached a substantial measure
of agreement. They failed, however, to reach unanimity on certain questions
before the Coalition Government broke up and their report was never, therefore,
submitted to the Cabinet. On coming into office we decided to use the draft
report of this Committee as a basis upon which to formulate our recommendations
on future broadcasting policy and the following paragraphs represent the views
expressed in t h a t draft amended on points on which we found ourselves in
disagreement with it.
Ministerial Control and Television.
4. The future control of theB.B.C. is being considered in connection with the
future of Government Information Services generally. A summary of views
on this subject expressed in the draft report is being circulated in connection
with those discussions and we have therefore omitted, where possible, all reference
to it from the present paper. Our recommendations on future television policy
have already been considered and approved by the Cabinet ( C M . (45) 34th
Conclusions, Minute 1).
The Need for a Public
Enquiry.
5. Before the B.B.C.'s Charter was renewed in 1937, the PostmasterGeneral appointed an independent committee, under the Chairmanship of Lord
Ullswater, to advise him on the future organisation of broadcasting. This
committee took evidence from the public and its report was published (Gmd. 5091).
Subsequently the Postmaster-General issued a White Paper (Cmd. 5207) setting
out the Governments decisions upon its recommendations. There was a
divergence of view among our predecessors whether or not a similar procedure
should be followed on this occasion and they decided to leave the question to the
decision of the Cabinet. After consideration, however, we are satisfied that
the issues involved are plain enough to render such an enquiry unnecessary.
I . — T H E FUTURE OF THE
B.B.C
The Renewal of the Charter.
6. The B.B.C.'s Charter and its Licence from the Postmaster-General
expire on the 31st December, 1946. We have considered whether after that date
the B.B.C. should continue to be the only body licensed to originate broadcasts
in this country, since if it is agreed that a single national body is desirable, we
have no evidence of any widespread desire for a radically different type of
organisation. I t has been argued that the existing system places too much power
in the hands of a single Corporation and deprives broadcasting of the advantages
of healthy competition. One alternative scheme, for instance, has been suggested
whereby the State would own the physical assets required for broadcasting, while
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the provision ot programmes would be entrusted to three competing corporations,
each of which would receive a basic share of the licence fees plus an additional
share based on the votes of listeners.
7. The replacement of the existing functions of the B.B.C. by a system of
competition would involve a very great upheaval in the organisation of broad­
casting in the United Kingdom, and we do not think that such advantages as
might be derived from competition would outweigh the disadvantages resulting
from the break-up of the present system. W e believe t h a t the greatest advances
both in technique and in programmes will be made, not by dissipating the avail­
able resources among a number of competing bodies, but by improvements in the
organisation of the B.B.C. W e accordingly recommend t h a t the B.B.C. should
continue to be the sole authority licensed to originate broadcasts in the United
Kingdom and t h a t the Charter should be renewed for a further period of ten
years from the 1st J a n u a r y , 1947.
The Board of Governors.
8. Governors are appointed by the Crown on the recommendation of the
P r i m e Minister and serve for a period not exceeding five years, but are eligible
for reappointment. The qualifications expected of them are that they should
be persons of judgment and independence, free of commitments, who inspire
confidence by having no other interests to promote t h a n those of the public service.
Originally five in number, the size of the Board was increased to seven on the
recommendation of the Ullswater Committee. The present membership is :—
Sir Allan Powell (Chairman),
Mr. C. H . G. Millis
(Vice-Chairman),
Lady Violet Bonham-Carter, Sir I a n Fraser, M . P . , D r . J . J . Mallon, Mr. A . H. Mann, The Hon. Harold Nicolson. 9. W e attach great importance to the Governors being as representative as
possible of the public which they serve and we are convinced that the growing
importance of broadcasting makes it necessary for the B.B.C. to be controlled
by the best available talent. For this reason we recommend t h a t : —
(a) The Chairman of the Governors should be a really outstanding figure in
public life.
(b) The representation of different age groups should be borne in mind in
selecting Governors. The average age of the present Board is too high.
(c) Care should be taken to ensure that the whole Board does not have to be
renewed a t the same time.
(d) Governors (including the Chairman) must not be given reason to expect
reappointment on the termination of their period of office.
10. W e consider t h a t it should be made clear to the Board that the Crown
expects it to take an active interest not only in programmes but in the financial
and establishment policy of the B.B.C.
11. We would also recommend that consideration be given to the reduction
of the salaries at present received by the Board (£3,000 for the Chairman and
£1,000 for the other members). The appointments clearly demand ability and a
high sense of responsibility, but members of important municipal committees
receive no remuneration whatever for their services.
Staff.
12. The Ullswater Committee made recommendations about the recruitment
and terms of appointment of staff designed to prevent charges of nepotism and
favouritism in selection, and to ensure that, in any matters of controversy with
which they had to deal officially, members of the staff maintained a degree cf
anonymity and impartiality in public similar to t h a t expected from Civil
Servants. These recommendations were accepted and there have since then been
no important developments in this field which call for a reconsideration of the
status of the B.B.C. staff. I n staff matters the B.B.C. should retain the indepen­
dence which it now possesses and Government control should be restricted to
laying down the broadest possible lines of policy within which the B.B.C. should
work.
%
13. The salaries paid to the staff of the Corporation are appreciably higher ­
than those paid to Civil Servants bearing a similar degree of responsibility, and^
the B.B.C. pension rights also compare favourably with those of Civil Servants.
The B.B.C. view is, we understand, that a strict analogy cannot be drawn between
the B.B.C. staff and that of the Civil Service; and t h a t the highest posts in the
B.B.C. are rather comparable to those in a great business undertaking, while the
staff actively engaged in broadcasting should be compared with editors, artists
and members of similar professions.
14. We agree that the B.B.C. should not be rigidly bound to relate the
salaries and conditions of its permanent staff to those ruling in the Civil Service,
but we think that in fixing salaries and conditions it should pay proper regard
to those of the Civil Service and to the greater security offered by employment in
a public corporation, as compared with employment in most business concerns.
II.—TECHNICAL
CONSIDERATIONS AFFECTING BROADCASTING.
15. The development of British broadcasting, both in the number of
programmes broadcast and in the quality of the transmission and reception,
depends very largely on the progress made in overcoming the technical problems
of wireless.
.
.
.
. . .
Quality of Transmission and Reception.
16. We attach great importance to improving the quality of transmission.
The B . B . C . is anxious to spend about £ 2 5 0 , 0 0 0 per annum on research and
development in such spheres as acoustics and radio transmission, and we support
this proposal. So far as improvements in the efficiency of receiving sets are
concerned, we feel that competition between radio manufacturers ought to provide
the necessary incentive.
Electrical
Interference.
17. Interference with reception results from the use of electrical appliances,
high voltage electricity transmission lines, neon signs and other processes
involving the use of electricity. This interference may be expected to increase
in severity and, though improved broadcasting technique can do something to
counteract it, any real attempt to eliminate it would probably involve legislation,
and would require the concurrence of the electrical industry. We are glad to
know that a Committee of the Institution of Electrical Engineers, which has
studied the question, has reported to the Postmaster-General in favour of such
legislation, and we hope that time will be found for the Bill in the Governments
legislative programme within the next year or two.
Wavelengths and
Programmes.
18. The number of wavelengths which can be used for radio transmission
is strictly limited, and the competition for them between different countries and
between different purposes will increase rather than diminish in future.
Moreover, while considerable progress is being made with research into certain
aspects of radio technique, such as the development of transmission over ultra­
short wavelengths, it is unlikely that these new methods of transmission will be
available on a large scale for at least several years to come. The development of
our services during this period, therefore, depends on our ability to make the best
use of a strictly limited number of wavelengths. The position in regard to the
four types of wavelengths which can be used for broadcasting is summarised in
the Appendix to this report.
19. I n considering future programme policy it is necessary to have a clear
idea of the number of long and medium wavelengths which may be available to us
for broadcasting. We can, for this purpose, ignore short wavelengths as these
are not allocated to individual countries by international convention. Except for
two international common medium waves which can be used only by very low­
powered stations, this country, before the war, was using one long wave and eleven
medium wavelengths. Of these the long wave and ten medium wavelengths had
been allocated to us under the Lucerne Convention, while we had secured the use of
the eleventh medium wavelength by agreement with the countries to which it had
been allocated under that Convention.
20. Before the war the one long and eleven medium wavelengths available
to us were used as follows :—
National
ServiceOne long wavelength. . One medium wavelength. Seven Regional
Programmes—
Ten medium wavelengths.
A t present we are using two long wavelengths and eleven medium wave­
lengths as follows :—
National or Light
Programme—
One long wavelength.
One medium wavelength.
Seven Regional
Programmes—
E i g h t medium wavelengths.
European Service and Broadcasts to Germany—
One long wavelength.
Two medium wavelengths.
21. Our use of the additional long wavelength is, however, only temporary
and there is no prospect of our being able to retain it. There is a good prospect
of our being able to continue to use an eleventh medium wavelength (not
necessarily the one which we are using at the moment) by agreement with
the country or countries to which it is allocated, provided t h a t we use it in such
a way as to eliminate mutual interference. There is some prospect of our obtaining
the shared use of still further medium wavelengths but we are advised t h a t our
chances of doing so are not high. There is also a remote possibility that we
may secure the surrender of one or more wavelengths allocated to Germany under
the Lucerne Convention but we understand that the control authorities regard
it as essential to retain all these wavelength for broadcasting to the troops or to
the German civil population in the four zones of occupation. While, therefore,
we consider t h a t everything possible should be done to secure the use either
outright or on a shared basis of additional medium wavelengths, we think t h a t
for the purpose of this report we must assume that (apart from the two inter­
national common wavelengths) we have only one long and eleven medium wave­
lengths at our disposal.
III.—BROADCASTS TO FOREIGN AUDIENCES.
The European
Service.
22. During the war the European Service of the B.B.C. was invaluable
in creating and maintaining goodwill towards this country, and we are satisfied
t h a t it is essential, in the national interest, t h a t the service should continue.
Conditions have, of course, changed with the advent of peace, and the European
Service cannot expect to retain the enormous audience which it built up for itself
during the war. I n the first place, it is normally not technically possible for
transmission from this country to Europe to compete with the standards of
audibility achieved by Continental stations, and European listeners will no longer
have the strong incentive to listen to British programmes t h a t they possessed
under the German domination. Moreover, now t h a t the national broadcasting
systems of the Continent have regained their independence, we must assume t h a t
many listeners will be content to take from them, the news and comment on
current events for which they were forced to rely on London during the war.
23. Some decrease in the wartime European audience of the B . B . C . is,
therefore, inevitable and steps have already been taken to reduce the volume of
the service to a size more in keeping with its potential audience. Nevertheless
there is strong evidence t h a t the European Service retains a surprisingly large
audience and that our friends on the Continent a r e most anxious that it should
continue. Moreover, it is clear that both the Americans and the Russians intend
to broadcast to Europe on an ambitious scale and we cannot afford- to let the
British view-point go by default.
24. To continue the European Service effectively requires the use of at
least two medium wavelengths on high power in addition to short waves. We
consider that for these it has a prior claim on whatever medium wavelengths a r s
available to this country.
Other Overseas Services.
25. Transmissions to countries outside Europe are made on short wave­
lengths and it will be seen from para. 3 of the Appendix that we may expect
to have a sufficient number of short wavelengths to enable a number of programmes
to be broadcast from this country simultaneously. The problem here, therefore,
is to how best to allocate our short wave resources between the various foreign
audiences and the Empire audiences who must also be served with these wave­
lengths and we think t h a t this question can best be left for decision in the light
of circumstances ruling from time to time.
General
Considerations.
26. We would draw attention to two points in connection with all overseas
broadcasting to which we attach importance.
(a) I t should be our aim to secure the acceptance by overseas broadcasting
authorities of as many United Kingdom programmes as possible for
rediffusion over their national networks. Such programmes reach
the overseas listener with as high a standard of audibility as his
local programmes and do much to promote a knowledge and under­
standing of British life and customs. We should also welcome the
acceptance by the B.B.C. of suitable foreign, and particularly Empire,
programmes for rediffusion in the home services.
(&) Great care should be taken to ensure the complete objectivity of the news
bulletins which will form the kernel of all broadcasting for overseas
reception. The B.B.C.'s reputation for telling the t r u t h even when
it hurts must be maintained, which means that the treatment of an
item in overseas news bulletins must not differ in any material respect
from its treatment on the current news bulletins for domestic listeners.
Interference
with Maritime Wireless Services.
27. High-powered broadcasting stations situated near the coast, whether
designed for domestic or overseas audiences, considerably increase the danger to
life at sea by interfering with marine wireless services and, in particular, with
the ships' distress service. This is due to the fact that the existing wireless
equipment of most British and foreign ships cannot exclude signals transmitted
with the power used by these broadcasting stations.
The problem is,
unfortunately, particularly serious in the North Sea area, owing to the very
high power of the transmitters (greatly in excess of that permitted under existing
international regulations) which we use for the European Service.
28. We have discussed this problem with the Minister of W a r Transport.
Though fully conscious of the need to minimise the danger to life at sea, we are
satisfied that, for the reasons set out above, we must maintain a European Service
operating at high power on two medium wavelengths. In these circumstances,
we have agreed with the Minister of W a r Transport that everything possible
should be done to mitigate the interference caused by our European transmitters
and to improve ships' wireless equipment. The Minister of W a r Transport is
considering means of providing improved types of wireless equipment which alone
can finally solve the problem, and is pressing on in the meantime with the
provision of auxiliary equipment which will considerably alleviate interference
with reception by ships' receivers. The manufacture and distribution of this
equipment will, however, be spread over a number of months, and an immediate
mitigation of the danger to shipping can be obtained only by modifying the
broadcasting arrangements. This aspect of the problem is being discussed as a
matter of urgency between the officers of the Departments concerned and the B.B.C.
I V . — E M P I R E BROADCASTING.
General Policy.
29. The Broadcasting Committee took the views of the Dominions, India
and Colonial Offices and of the B.B.C. on Empire broadcasting, and their draft
report represented general agreement with these authorities on the policy to be
followed. We have found little to criticise in their conclusions on this subject.
30. The Empire will not accept from the United Kingdom broadcasts which
it regards as Government propaganda. This does not mean that there should be
no co-operation between tne B . B . C . and the Government. Indeed, it is of great
importance that the closest possible liaison should be maintained between them
so that, in. shaping its Empire broadcasting policy, the Corporation can have
available to it all relevant information about the current political background and,
in the case of Colonial broadcasts, can send out material which fits in with the
educational policy of the Colonial Office and the Colonial Governments. But there
must be no suggestion t h a t in its Empire broadcasts the B . B . C . is merely the
Government's subservient tool.
The
Dominions.
31. So far as broadcasting to the Dominions is concerned we recommend
that:—
(a) the wavelengths available should be used to their utmost and should be
supplemented by the transmission of programmes through the overseas
telephone services for re-broadcasting locally; and by the export of
programmes in the form of scripts and recorded material;
(b) the B . B . C . should make a greater use of programmes specifically directed
to a single Dominion. Canada, for instance, would pay greater atten­
tion to a programme especially designed for Canadian audiences than
to a North American programme mainly directed to the United States;
(c) the B . B . C . should employ staff with a background of Dominion experience
in its programme departments. W e are glad to know that the B . B . C .
hopes to make arrangements for the periodic interchange of staff with
Dominion broadcasting authorities;'
(d) the Dominion authorities should be encouraged to develop more pro­
grammes suitable for United Kingdom audiences.
India and the Colonies.
32. I n both I n d i a . and the Colonies the primary use of broadcasting is
educational, and we believe t h a t wireless can make an enormous contribution to
the improvement of the educational standard among native races. To achieve this
the facilities for broadcasting must be greatly increased and we recommend
that:—
(a) The I n d i a n and Colonial Broadcasting authorities should be pressed to
. extend their broadcasting systems as rapidly as possible, the aim being
to ensure t h a t no p a r t of their territory should be out of reach of
wureless programmes especially designed for the local population and
capable of being picked up by comparatively cheap receiving sets, or
by the public address or relay systems. In the Colonial Empire a large
p a r t of the cost of such a policy would almost certainly fall on the
Imperial Exchequer, but we feel that the advantages to be gained
would more than justify the cost;
(b) As soon as possible, the precise needs of the Indian and Colonial Govern­
ments for this purpose should be ascertained and the necessary
technical staff and equipment made available to them from this
country.
V . — H O M E BROADCASTING.
Programmes and the Distribution of
Wavelengths.
33. As we have said above, the B.B.C. hopes that in the Spring of 1946
there will be three programmes available in the Home Service :—
(i) The L i g h t or National programme which will cover the whole country
and include British troops on the Continent. The programme will
run from 9 a.m. until midnight.
(ii) A series of regional programmes (now called the " H o m e Service")
running from 6-30 a.m. until midnight. These programmes will
contain a large amount of common material, but each of them will
include a certain amount of local material,
(iii) A t h i r d programme, mainly directed to the educated listener, which
will be used for such purposes as the broadcasting of plays, concerts
and operas in full. I t will probably run from 4 p.m. until midnight
and its introduction will not mean the elimination of the cultural
elements in the other two programmes. The name of this transmission
has not yet been decided and for purposes of convenience we refer to
it as the cultural programme. The B.B.C. is fully conscious of the
need to find a name which will be less forbidding to the general listener.
34. To carry these three programmes, we assume that there will be available
one long wavelength and nine main, medium wavelengths (i.e., that we shall"
succeed in retaining the use of one medium wavelength over and above the ten
allocated to us under the Lucerne Convention and that two medium wavelengths
will be used for the European Service). W e have discussed how to make the best
use of these resources with representatives of the B.B.C. As a result, we recom­
mend the following allocation :—
Light or National
Programme—
One long wavelength.
One medium wavelength.
Six Regional
Programmes—
Seven medium wavelengths.
Cultural
Programme—
One medium wavelength supplemented by the use of the two inter­
national common wavelengths on low power.
This distribution will, we understand, serve the widest possible audience for
each of the three programmes within our available resources, the figures being
estimated by the B.B.C. as 95 per cent, for the Light, between 90 and 93 per cent,
for the regional, and roughly 80 per cent, for the cultural programme.
35. There are, however, certain factors which must be taken into account
in considering the allocation which we propose :—
(a) I t will involve a reduction in the number of regional programmes from
seven to six, the Midland and the West of England Regions being
amalgamated. There may be some objection to this reduction, but
the full number of regional programmes could not be maintained
without seriously reducing the number of listeners who received the
cultural programme, and we consider that on balance an adequate
coverage for the latter programme is more important than the
retention of seven regions.
(b) The reallocation cannot be achieved without some degradation in the
high standard of audibility to which British listeners were accustomed
before the war.
The reduction in the quality of reception will,
however, affect a relatively small number of listeners, and we con­
sider that the great majority of them will willingly accept it if in
compensation they are offered a choice of three programmes.
(c) W e attach considerable importance to securing as large as possible an
audience for the cultural programme as this promises to become an
important vehicle for improving the general education of the country.
We think, therefore, t h a t the technical problem of extending its
- coverage (for example, by the use of frequency modulation systems)
should be urgently pursued by the B.B.C. We are also inclined to
the view that it should have first call on any further medium wave­
length whose use we may secure by agreement. .
(d) A n audience of as much as 80 per cent, for this programme will only be
possible if we can continue to use the 514-metre wavelength which
was allocated under the Lucerne Convention to Tunis and Latvia, or
can secure the use of another similar wavelength.
There is good
prospect of our being able to do this, but we consider that if our hopes
are falsified the allocation of our available wavelengths must be
reviewed in order to release sufficient wavelengths to give the cultural
programme an adequate coverage even at the cost of a further
reduction in the number of regional programmes.
Regional
Devolution.
36. The effect of the reduction in the number of regional programmes upon
the entertainment which they offer can, we think, be substantially mitigated by
a system of devolution which would increase the status of the individual regional
organisation and encourage a spirit of emulation throughout the service. Effective
devolution will increase the cost of broadcasting, since, if the regional officers are
to feel free, within broad limits, to run their own programmes in their own way,
they must have sufficient latitude in expenditure; and there will be in each region
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c
services which, from the purely financial point of view, could be r u n more
economically from headquarters.
The additional cost will, however, be fully
justified if it leads to a number of vigorous regional organisations, each with a
staff drawn largely from the region which it serves and each with a distinctive
programme policy.
Advertisement
and Sponsored
Programmes.
37. The B.B.C. has always been forbidden to include direct advertisements
in its programmes. As regards sponsored programmes, the Ullswater Committee
recommended that the B.B.C. should retain the power to permit such programmes
which had been given to it in its first Charter, but that any increase in its use
should be limited to the initial stages of television broadcasts. The Government of
the day did not accept this recommendation and, in our opinion, there is no reason
to reverse this decision. The B.B.C. has shown no desire to use sponsored
programmes, and any attempt to do so would certainly be resisted by such interests
as the press and resented by a large body of public opinion. We therefore
recommend t h a t the prohibition on the use of both advertisement and sponsored
programmes by the B.B.C. should continue.
Broadcasting
of
Parliament.
38. W e considered proposals for the broadcasting in full of debates in both
Houses of Parliament. W e agree as to the need to encourage public interest in
the working of Parliament, and we believe t h a t the B.B.C. could play a greater
p a r t in achieving this end. The proceedings of Parliament, however, do not lend
themselves to broadcasting, and we think t h a t the proper course is to lay upon
the B.B.C. the obligation to broadcast an adequate and impartial daily account
of proceedings in both Houses, in addition to its present weekly summary. This
report should be given by professional reporters who are not Members of
Parliament, and the authorities of P a r l i a m e n t should be invited to provide
adequate facilities for the B.B.C. reporting staff to perform this duty.
Wire
Broadcasting.
39. W i r e broadcasting is a system whereby the broadcast programme is
received at a central station by wire or wireless and is thence transmitted over a
wire network to individual subscribers. The subscriber requires only a loud­
speaker or a simplified wireless set to receive the programme. W i r e broadcasting
stations or relay exchanges have always been in private hands and the companies
operating them have done so under licence from the Postmaster-General.
All
licences granted provide—
(a) t h a t (with very minor exceptions) the relay exchanges must not distribute
locally-originated programmes;
(b) t h a t all subscribers must hold a wireless receiving licence. ,
40. The development of wire broadcasting in this country has varied
considerably in different regions. The main drawback of the system is t h a t it
has been able to give listeners only a limited choice of programmes, and before
the war it offered few attractions to the listener in districts where reception on
a normal set was satisfactory.
41. A t the outbreak of war subscribers to wire-relay exchanges represented
2 - 9 per cent, of the total number of wireless licence holders. B u t war conditions
have favoured the development of the system, and the percentage had risen to
5-7 per cent, by December 1944. W e are advised that the system is unlikely to
expand in peace-time unless it can solve the problem of transmitting a much
greater variety of programmes to its subscribers and can successfully cope with
the antagonism which its progress must arouse in the powerful interests whose
prosperity depends on the demand for wireless sets.
42. The Ullswater Committee recommended t h a t the ownership and
operation of the relay exchanges should be taken over by the Post Office for the
reasons " which have led to the establishment of the postal, telegraph and tele­
phone services and indeed the broadcasting service itself as unified national
undertakings in public ownership a n d control." The Government of the day
decided, however, as an interim measure to extend the licences of the existing
relay exchanges for three years from the 31st December, 1936, on the ground that
the technical problems involved in wire relay services were still to a great extent
in their infancy and that it was therefore premature to start negotiating with
the owners of some 340 exchanges for the transfer of a system which might well
prove obsolete as technical knowledge advanced. Before the three years expired;
war broke out and the decision was postponed for a further ten years until 1949.
43. We have considered afresh whether the relay exchange system should
be taken over by the Government but have come to the conclusion that a decision
should be deferred until the current licences are due to expire in 1949. The
system appears to be functioning efficiently under private ownership. There is
no noticeable demand for its extension to parts of the country not served by the
commercial companies and during the next two or three years the restoration of
the postal, telephone and telegraph services will absorb all the labour and material
resources available to the Post Office.
VI.—FINANCE.
Pre-War
Position.
44. Before the war the grant to the B.B.C. under the Broadcasting Vote
represented a proportion of the net proceeds of fees paid for wireless receiving "
licences after the departmental costs of issuing licences and of associated services
had been met. These latter costs were borne on Departmental Votes; and in the
immediate pre-war years were assessed at 9 per cent, of the gross proceeds from
the fees. The B.B.C. was entitled to receive an amount equivalent to 75 per cent,
of the net proceeds but, if the Treasury were satisfied that this income would be
insufficient to support all B.B.C. services, they could approve an increase in the
percentage. W i t h the development of television and foreign language broadcast­
ing, 75 per cent, of the net revenue began to prove insufficient, and in the financial
year 1937-38 the B.B.C. grant was increased by an additional 8 per cent, of the
net revenue. A further increase of 7 per cent, was approved in 1938-39, so that
in the last complete pre-war year the Corporation received 90 per cent, of the
net (i.e., 81.9 per cent, of the gross) revenue.
Post- War Position.
45. We are in favour of retaining the pre-war practice of meeting the costs
of all B.B.C. services out of a single Broadcasting Vote; and also of returning
to the arrangement whereby the provision for home broadcasting and for tele­
vision services is related to a definite proportion of the revenue from licence fees;
the B.B.C. having freedom within broad limits to spend this revenue at its
discretion on the development of the services for which it is provided.
46. The table below represents an attempt to assess the finance of broad­
casting and television services in a normal post-war year assuming that the
licence fee continues to be 10s. per annum. The figures cannot be more than very
rough estimates, but we believe that they represent as accurate a forecast as it
is possible to make a t the present time :—
BROADCASTING AND TELEVISION.
Estimated
Expenditure.
£ million.
20
Home Broadcasting
15
Overseas Broadcasting
B.B.C.'s Income Tax Lia1-00
bility
Services rendered by Post
Office and other Govern0-50
ment Departments
2-00
Television
Estimated
Revenue.
£ million.
Licence Fee Revenue (assuming 10 million licence
holders)
5-00
B.B.C. revenue from publications, &c. ...
...
...
0-50
Revenue from special tele­
vision licences, say
...
0-05
5-55
13-85
47. On this basis it will be seen that there is a gap of £ 8 - 3 million between
revenue and expenditure. As a step towards bridging it we recommend that the
wireless licence fee should be increased from 10.s. to £ 1 at the first convenient
opportunity. £ 1 is a very reasonable fee to charge for the service provided and
the proposed increase should not materially reduce the number of licence holders.
48. Assuming that a £ 1 licence fee produces £10 million per annum, the
excess of expenditure over revenue will be reduced to rather over £ 3 million
per annum. W e recommend that this should be met by the Exchequer's under­
taking liability for the cost of overseas broadcasting (estimated at £3 -15 million
[30895]
c 2
per annum) independently of any revenue from licence holders. W e think that,
as television ought ultimately to be of direct benefit to a substantial proportion
of broadcast listeners, the cost of its development can fairly be regarded as an
expense to be set off against licence fee revenue.
49. If our recommendations are accepted it will, of course, be necessary
to ensure t h a t the B.B.C.'s expenditure on each of the Services for which it is
responsible is in accordance with the intention of Parliament in approving
the Broadcasting Vote.
VII.—MISCELLANEOUS QUESTIONS.
Commercial Broadcasting from Overseas.
50. U n t i l 1938 the United Kingdom Government tried hard to curtail
the growing volume of broadcasting directed at this country from commercial
stations situated on the Continent, of which the best known were Radio
Luxembourg and Radio Normandie. I n 1933 a resolution was passed by the
Council of the International Broadcasting Union to the effect that the diffusion
of such programmes constituted an " inadmissible act from the point
of view of good international relations," and in 1938 H i s Majesty's
Government unsuccessfully
put forward
a proposal t h a t such pro­
grammes should be prohibited.
These efforts, however, proved ineffec­
tive, and in the years immediately before the war the Government itself on
occasion used these stations to broadcast to Germany. Our attitude towards
them changed therefore to one of neutrality.
51. Negotiations are proceeding for the lease of Radio Luxembourg for
broadcasting to Germany and A u s t r i a by the British and possibly by other
Governments. B u t there were before the war other commercial stations overseas,
built to serve the British listeners, and we may again be subject to such com­
mercial broadcasts on a substantial scale. We consider that there is a funda­
mental objection to H i s Majesty's Government^ countenancing the broadcasting
from abroad of advertising programmes whose diffusion it refuses to permit
from its own territory, and we think t h a t a determined attempt should be made
to eliminate this type of broadcasting. While we realise t h a t this may require
a degree of international agreement which will not be easy to secure, we hope
that the foreign Governments concerned will in future be more ready to appreciate
our point of view t h a n they were before the war. Should the attempt fail we
must rely on the increasing attractiveness of the B.B.C. programmes. I t was
clearly established before the war t h a t stations like Radio Luxembourg could
rely on a substantial audience in this country only at times, such as the early
morning, when the B.B.C. was not transmitting, or on Sundays, when its pro­
grammes were regarded as too solemn by a large body of public opinion. W e are
glad, therefore, to note t h a t the B.B.C. is starting its daily broadcasts at 6.30 a.m.
and is continuing to provide Sunday programmes of the more popular kind
introduced during the war.
Control of Wireless in Etc-Enemy
Countries.
52. We understand t h a t arrangements have been made for the control of
German broadcasting in the period of military occupation. As p a r t of the general
control of all media for influencing German public opinion, the Allied occupation
authorities have taken over all wireless transmitters in Germany and will operate
such of them as they think fit, the main object of the control being to facilitate
the execution of the policy of the supreme occupying authority. As reliable
German broadcasters and technicians emerge, a progressive increase in the number
of German-originated broadcasts is contemplated.
53. No plans have yet been made for the control of Japanese broadcasting,
but the fundamental object—complete subordination of the Japanese system to
the needs of the occupying authority—will no doubt be the same, although the
means of achieving it may differ from those adopted in Germany.
54. As regards post-occupation broadcasting in Germany and J a p a n , we
consider it premature for us to make any recommendations at this stage.
International
Broadcasting
Station.
55. The League of Nations Operated a broadcasting station known as
" R a d i o N a t i o n s " from 1932 until the outbreak of war, but this station was
only used to broadcast to member Governments who had receiving stations capable,
of picking up its broadcasts, and it was not suitable technically for broadcasting
to the general listener. W i t h the outbreak of war Radio Nations was closed
down and its capital assets were sold to Radio Suisse. Its failure offers no
criterion by which the possible success of an international broadcasting station,
attempting to serve peoples as distinct from their Governments, might be judged.
56. The possibility of an international station which could compete with
national stations raises political issues of great importance. Much study would
be required to solve even the technical problems involved in such a project and,
in view of the present uncertainty of the political background against which such
a station would have to operate, we have not felt justified in asking the Post Office
technical experts to carry but such an investigation. I n our opinion the possibility
of an international wireless service cannot be usefully considered until the form
of world organisation is known.
57.
SUMMARY OF RECOMMENDATIONS.
Introduction.
I . We do not consider that a public enquiry is necessary before a decision
is reached on the renewal of the B.B.C.'s charter (paragraph 5).
I . - F u t u r e of B.B.G.
Renewal of Charter.
2.- The B.B.C. should continue to be the sole body licensed to originate
broadcasts in the United Kingdom, and its Charter should be renewed for a
further period of 10 years from the 1st January, 1947 (paragraph 7).
Board of Governors.
3.—(a) The Chairman of the Board should be a really outstanding figure in
public life.
(6) The representation of different age groups should be borne in mind in
selecting members of the Board.
(c) The whole Board should not retire at the same time.
(d) Governors should not be given reason to expect reappointmenfc
(paragraph 9).
4. The Board should take an active interest in the financial and establish ­
ment policy of the Corporation (paragraph 10).
5. Consideration should be given to reducing the salaries paid to members
of the Board (paragraph 11).
Staff.
6. * The B.B.C. should retain its independence in staff matters but in fixing
salaries and conditions should have regard to those of the Civil Service and to
the greater security offered by its service, as compared with employment in
business concerns (paragraph .14).
II.—Technical Considerations.
7. The B.B.C. should be encouraged in its research programme for improving
the quality of transmission (paragraph 16).
8. We attach importance to the passage of legislation for the. control of
electrical interference (paragraph 17).
9. Every effort should be made to secure the use of additional medium wave­
lengths (paragraph 21).
I I L - B r o a d c a s t s to Foreign Audiences.
10. The European Service must continue and for this purpose at least two
medium wavelengths must be allocated to it (paragraphs 23 and 24).
I I . W e should attempt to secure the acceptance by all overseas broadcasting
authorities of as many United Kingdom programmes as possible for rediffusion
over their own networks and should welcome the acceptance of suitable foreign
and Empire programmes for rediffusion in the home Services (paragraph 26 (a)).
12. Great care should be taken to ensure the complete objectivity of news
bulletins for overseas consumption (paragraph 26 (6)).
13. The problem of mitigating the interference of high-powered broad­
casting stations with marine wireless services, particularly the ships' distress
service, should be urgently pursued (paragraph 28).
IV.—Empire Broadcastings
General Policy.
14. There should be no suggestion t h a t E m p i r e broadcasts are controlled by
the Government, but the B.B.C. should keep in close contact with the Government
Departments concerned (paragraph 30).
The
Dominions.
15.—(a) Everything possible should be done to increase the interchange of
programmes between the B.B.C. and Dominion Broadcasting authorities.
(b) Greater use should be made of programmes specifically directed to a
single Dominion.
(c) Interchange of staff between the B.B.C. and Dominion authorities should
be encouraged (paragraph 31).
India and the Colonies.
16.—(a) I n d i a and the Colonies should be pressed to extend t h e i r ' broad­
casting systems as rapidly as possible and the necessary technical staff and
equipment should be made available for this purpose (paragraph 32).
Y.—Home Broadcasting Policy.
Allocation of
Wavelengths.
17. The proposals p u t forward by the B.B.C. for securing the widest possible
coverage for the three home programmes should be accepted. These involve a
reduction in the number of Regional programmes from seven to six by the
amalgamation of the Midland and West of England Regions (paragraph 34).
18. The technical problem of extending the coverage of the proposed cultural
programme should be urgently pursued (paragraph 35 (c)).
19. I n the event of our failing to retain the use of a borrowed wavelength
t h a t will give the cultural programme an audience of the order of 80 per cent,
of the population, the allocation of our available wavelengths should be reviewed
in order to give this programme an adequate coverage (paragraph 35 (d)).
Regional
Devolution.
20. The aim should be to create a series of vigorous regional organisations
each with a staff drawn largely from the region which it serves and with a dis­
tinctive programme policy (paragraph 36).
Advertisement
and Sponsored
Programmes.
21. The existing prohibition on the B.B.C.'s use of such programmes should
continue (paragraph 37).
Broadcasting of
Parliament.
22. The B.B.C. should be under obligation to broadcast an adequate and
impartial daily account of the proceedings in both Houses of Parliament. The
account should be given by professional reporters who are not Members of Parlia­
ment (paragraph 38).
Wire
Broadcasting.
23. I t is premature to take a decision on the acquisition by the State of
the privately owned wire relay exchanges (paragraph 43).
* See also R e c o m m e n d a t i o n s 11 and 12.
YI.—Finance.
24.—(a) The cost of all B.B.C. services should be borne out of a single Broad­
casting Vote; the provision for home services and for television being related to
a definite proportion of the revenue from licence fees (paragraph 45).
(&) The wireless receiving licence fee should be increased from 10s. to £ 1
per annum at the first convenient opportunity (paragraph 47).
(c) The cost of overseas broadcasting should be borne by the Exchequer
independent of any licence fee revenue (paragraph 48).
VII.—Miscellaneous Questions.
25. An attempt should be made to eliminate commercial broadcasting from
overseas (paragraph 51).
H . M.
E. J . W.
L.
P . J. N.-B.
APPENDIX.
WAVELENGTHS USED FOR BROADCASTING PURPOSES.
1. Long
Wavelengths.
The main value of these is to serve an area comparable in size to the larger
countries in Europe and they are thus of considerable value in international
broadcasting. Only a limited number of long waves are available for broadcasting
purposes and there is great competition for their use. The United Kingdom's
single long wavelength is used to provide a service to regions, such as Devon, where
reception of medium-wave transmissions is unsatisfactory.
2 . Medium
Wavelengths.
Competition for medium wavelengths (normally used for national as opposed
to international broadcasting) had, even before the war, reached a stage at which,
in order to achieve an acceptable allocation in Europe, the International Con­
ference responsible had had to encroach upon wavelengths which had not been
allocated for broadcasting purposes. Technical advances and the reduction of the
excessive number of wavelengths possessed by Germany and France might improve
this situation were it not for the fact that there is a considerable increase in the
demand for medium wavelengths from the smaller countries (some of whom were
undoubtedly badly treated before the war) and greatly increased demands for
such purposes as aviation.
3. Short
Wavelengths.
The most effective use of the short wave is for long-distance broadcasting.
There is an increasing demand for short waves for marine, aviation and commercial
telephone and telegraph services. Many of these services were closed down during
the war, but with the end of hostilities their demands are increasing rapidly and,
while it should be possible for us to secure sufficient short wavelengths to enable the
transmission of a number of independent programmes for reception outside
Europe, we cannot expect in peace-time to maintain on anything like their war­
time scale the long-distance broadcasting services which at present depend on
short waves. Long-distance broadcasting can also be done effectively, where
circumstances permit, by transmitting programmes over commercial radio tele­
phone links or over telephone cable circuits for re-broadcasting in the areas
concerned.
4. Ultra-Short
Wavelengths.
The field served by very short wavelengths is generally no larger than a radius
of 30 miles around the transmitting station, a factor which clearly limits their
usefulness for broadcasting purposes. Within this field there is competition for
waves from such activities as radar, and at the present moment this range of the
radio spectrum is very congested by military requirements. I t is not yet certain
by how much the end of hostilities has reduced the demands of radar.
I t is possible t h a t the development of frequency modulation will increase
considerably the potentialities of ultra-shortwave broadcasting.
Frequency
modulation offers an improved reception compared to the system of amplitude
modulation in general use at the present time and substantially increases the
number of stations which can operate on the same wavelength without mutual
interference, but its value in the next few years will be limited by the fact that the
reception of frequency modulation transmissions requires new types of wireless
sets. Finally, the availability of ultra-short waves for broadcasting will
depend to some extent on the demands of television. I t is essential for the develop­
ment of television that we should have a sufficient number of ultra-short wave­
lengths for a national television service and this will be a limiting factor on the
use of these wavelengths for sound broadcasting purposes.